Update on projected progression of Black and Minority Ethnic groups and female Police Officers and police staff during the next ten years

Report: 9
Date: 4 November 2010
By: Martin Tiplady on behalf of the Commissioner

Summary

This report sets out projected future influences on levels of MPS recruitment, retention and progression for BME and female officers and staff over the next ten years.

The projections are made in the context of the anticipated impact of an overall increase in BME and Female recruitment, improved retention rates, the new MPS recruitment model for police officers, the change in MPS promotion processes, the impact of the Equalities Act 2010 (and subsequent regulations relating to the duties of public bodies), the Developing Training Programme and the introduction of a Professional Development Domain Framework, the MPS Workforce and Working Culture Action Plan, the impact of the Race and Faith recommendations and ongoing Talent Management activity.

A. Recommendation

That

1. The contents of this report are noted.

B. Supporting information

Introduction

1. At the meeting of this Committee on 8 July 2010 a report was submitted detailing the statistical projection of progression for BME and Female officers and staff in the MPS over the next 10 years. The report indicated that using historical trends and projecting forward, there would be no significant improvement in these areas at the most senior ranks and Police Staff grades.

2. This report builds upon the previous report and details a number of factors that could potentially have a significant positive impact on the progression of BME and female officers and staff in the MPS. This report also assesses the potential impact of the Government’s Comprehensive Spending Review.

3. The factors that are assessed as having a potentially positive impact on the progression of BME and female officer and staff are:

• Overall increase in BME and Female recruitment
• Improved retention rates
• The new MPS recruitment model for police officers
• The change in MPS promotion processes
• The impact of the Equalities Act 2010 (and subsequent regulations relating to the duties of public bodies)
• The Developing Training Programme and the introduction of a Professional Development Domain Framework
• The MPS Workforce and Working Culture Action Plan
• The impact of the Race and Faith recommendations
• Ongoing Talent Management activity
  

Overall increase in BME and Female officers and staff recruitment

4. Over the past decade, police officer recruitment in the MPS has shown a marked increase in the proportion of both BME individuals and females joining.

5. In 2000-01, only 6.7% of police joiners were from BME groups compared to 15.4% in 2009-10. Similarly, the proportion of female joiners rose in the same period from 20.6% to 30.8%.

6. The MPS has over 56% more people now than it did in 2000-01, with the strength increasing from 35,627 to 55,519, a rise brought about largely by the creation of the PCSO role and the growth in the Special Constabulary.

7. During this period, representation of both females and BME groups has improved and the PCSO and MSC groupings have become increasingly diverse. On 31-Mar-2001, just 7.4% of the MPS were from BME backgrounds, a figure that has more than doubled to 15.8% today.

8. Female representation has also grown every year from 28.1% in 2000-01 to 33.4% today, more than a third of the workforce.

Improved retention rates

9. Staff turnover in the MPS fell slowly over the past decade but has fallen sharply since April 2010.

10.Across the organisation, 7.1% of employees and MSC (Metropolitan Special Constables) left in the year 2001-02 compared to 6.3% in 2009-10 and a projected 5.4% in 2010-11.

11. The Special Constabulary has tended to be the group with highest turnover and recent growth in numbers has increased overall wastage slightly. Accordingly, ignoring this group and considering only MPS employees, the fall in turnover is more pronounced, moving from 7.1% in 2001-02 to 5.5% in 2009-10 and a projected 4.7% in 2010-11.

12. Virtually all of this fall can be accounted for by the equivalent drop in voluntary leavers, the rate of compulsory attrition remaining reasonably constant over the period. In 2001-02, turnover due to voluntary leaving was 4.5% compared to a projected 2.2% in 2010-11.

13. This latter figure certainly reflects the difficulty of the current economic climate but is, nonetheless, remarkably low and, coupled with the general downwards trend in voluntary turnover, a very positive indicator of a satisfied workforce.

The new MPS recruitment model for police officers

14. The new model of recruitment and training of police officers represents an innovative and significant shift in traditional recruitment, development and training. Currently, police officers are recruited through generic, lengthy ongoing campaigns and receive 25 weeks of foundation training upon appointment; the development and training does not take into account previous experience or prior relevant learning and qualifications.

15. The majority of new applicants (including police staff) will come from existing Police Community Support Officers and the Metropolitan Special Constabulary (MSC), where participants will receive development and training opportunities to gain independent patrol status (IPS), together with a qualification in relevant law and policing equivalent to that currently delivered through the Initial Police Learning and Development Programme (IPLDP), and be ready for immediate deployment upon appointment as regular police officers.

16. The MSC application rates are well within the target range of around 900 applications per month which is likely to yield around 236 MSC including 65 BME and 92 female per month.

17. Overall BME/female application rates have remained constant at 37% BME and 34% female, providing an average of around one-third of MSC applicants for both BME and female applicants.

The change in MPS promotion processes

18. All MPS promotion processes will now look to test the candidate's suitability based on the Met Performance Framework (MPF) published (for senior ranks) 18 October 2010. This new framework has been built from an extensive and representative sample of role holders, line managers and some external stakeholders.

19. It is current, streamlined and moves away from the rigidity of the ICF which was considered too task-focussed and encouraged candidates to 'evidence hunt' to satisfy a 'tick box' assessment approach. The new framework allows a focus on outcomes rather than task alone and includes leadership and MPS priorities encouraging a holistic assessment of a candidate's suitability for the target rank.

20. The upcoming Supt. to Ch. Supt. promotion process, which commence on 29 October 2010, introduces a more streamlined process that reduces bureaucracy and provides a 'devolved' responsibility to Business Groups and their Assistant Commissioners to undertake local selection assessment of their own officer's suitability.

21. A number of candidates that have been seen in the past will be invited to a Central Panel Interview. Those candidates that the Business Groups have selected as suitable for promotion to chief superintendent (and who they would be content to employ in that rank), will be interviewed against the MPF by a senior panel of Assistant Commissioners and Director of HR. All candidates will be interviewed by the same panel, as far as possible.

22. The new Chief Superintendent's process will be delivered in 5 weeks rather than 9 previously, with an inherent reduction in opportunity for evidence gathering activity and protracted preparation periods for candidates as well as reducing the abstractions of senior officers/staff in assessing over a number of weeks. The costs for this process have also been reduced where venue and technology hire has not been incurred.

23. In order to address the shortfall of female and BME candidates at this senior rank, the Promoting Difference team within Leadership Academy are setting up support sessions to take place immediately after the launch of the process, to provide information and guidance to maximise the preparation of candidates in these under-represented groups and level the playing field.

24. Once the timing and numbers of vacancies are known, for Superintendent and Chief Inspector ranks, the Police Promotions and HR Organisational Development teams in consultation with staff associations will work together to review and evaluate the needs of the Service, capture the learning from the Chief Superintendent's process and develop a model for a new promotion process that tests the MPF and assesses the suitability of officers for corporate promotion.

25. Early thinking suggests that the new model for these ranks will continue to look at reducing bureaucracy and delivery duration; based on the 2009 processes, whilst allowing a greater input from Business Groups to undertake some local assessment of their suitable officers.

Equality Act 2010

26. The Equality Act 2010 became law on 1st October 2010 and will consolidate existing equality law into a single piece of legislation. The main purpose of the Act is to harmonise and strengthen previous law on discrimination to promote equality and provide a simpler, more consistent framework for the effective prevention of discrimination.

27. The implementation of the Equality Act 2010, particularly the anticipated requirements of the public sector Equality Duty (due for enactment in April 2011) will require the MPS to place an emphasis on outcomes that demonstrably evidence promotion of equality in the workplace and in public service provision (as opposed to the bureaucracy of monitoring regimes).

28. With the requirement to have more transparent structures and systems around equality data collection and publishing, together with a broader scope for positive action enshrined in the Act, it will enable and empower the selection of suitably skilled and talented minority group staff to address issues of under-representation in the MPS.

29. It is anticipated that the requirements of the Public Sector Equality Duty will be managed through the Workforce and Working Culture Strand of the MPS Equality and Diversity Strategy 2009-12.

Professional Development Domain Framework

30. The new MPS approach to learning and development (the Professional Development Domain Framework) is based on moving towards an integrated professional development path which starts at the beginning of a police career (whether as a warranted officer or member of police staff) and continues through an individual’s working life, helping them to develop their professional capability to reach advanced standing within their chosen path.

31. The professional development domain framework will ensure that the provision of development opportunities, whether delivered in house or through external provision, is targeted and aligned to organisational priorities such as the progression of BME and female officers and staff.

32. Heads of Profession will set out the behaviours and skills required at each level within the pathway, in some cases (particularly in professional police staff roles) this will also outline the qualifications required at each level.

33. These will be identified at three key stages

• Induction
• Continued Development
• Advanced practitioner

34. Professional Development Domains (PDD) will group broadly similar paths to ensure continuity and endeavour to create building blocks to develop behaviours and skills, and whilst each PDD will set standards within their area, it is anticipated that these will often overlap e.g. all Heads of Profession and PDDs will be engaged in consultation around leadership standards.

Workforce and Working Culture Action Plan

35. The Workforce and Working Culture Action Plan directs the MPS’s internally focussed diversity and equality activity to help meet emerging organisational needs and challenges, using an evidence-led approach, it will ensure the organisation meets and exceeds its legislative requirements on equality in these areas.

36. The proposed aims of the draft Workforce and Working Culture Action Plan are:

• To achieve a more representative workforce at all levels and in all specialisms.
• To develop the skills, experience and confidence of line managers across the MPS, empowering them to deal with complex and diverse leadership / management issues.
• Increase staff satisfaction and to ensure staff feel that they are treated fairly and with respect.
• To achieve a workforce that is more understanding of the people we serve.

37. Work is ongoing to finalise activity under each of the aims and also in the development of governance processes to oversee progress of the action plan.

Race and Faith Inquiry Recommendations

38. In addition to the Commissioner’s commitment to attend a national symposium to consider direct entry at more senior ranks in January 2011, many of the recommendations made in the Race and Faith Inquiry have already been implemented.

39. Other Inquiry recommendations to help improve the progression of BME Officers and Staff will be addressed, in part, through the activity described in this report in relation to:

• The Equality Act 2010
• The Professional Development Domain Framework
• Ongoing talent management activity
• Workforce and Working Culture Action Plan

Ongoing Talent Management activity

40. With the introduction of a professional development domain framework, it is also proposed that Talent Management would be a less bureaucratic process with a greater emphasis on Business Groups identifying their talented individuals and providing them with accelerated opportunities, a model that can also be aligned to police staff roles. Talent Management programmes will have a key part to play in helping to achieve a more diverse workforce and will actively involve Staff Support Associations in providing support to individuals throughout the process.

41.The Equip to Achieve programme is a core element of the MPS Talent Management Strategy, with an overarching objective to identify and nurture talented BME police officers so that they are equipped to apply for the high potential schemes. A full evaluation of Year One of the programme was completed in early 2010, where of the 14 participants, 9 have gained places on the high potential scheme, 7 have so far gained promotion – two to senior management levels.

42.The launch of the Emerging Leaders Programme in 2009 provided the progression pathway for Inspectors and Chief Inspectors on Equip to Achieve, with Constables and Sergeants being prepared for the national High Potential Development Scheme. The MPS will continue to offer the Emerging Leaders Programme for high potential police staff at Band D, C and equivalent level and police officers at the rank of Inspector and Chief Inspector. A revised Intensive Development Programme will also be introduced to focus exclusively on talented police staff at Band E, F and G level.

43. It is envisaged that this will have a positive impact on the diversity profile for police staff, given that currently 63% of Band E, F and G staff are female, compared to 37% at Band B and A level. Whilst 28% of the target audience [Band E, F and G staff] are from BME groups, compared with 8.6% at Band B and A level.

Progression of PCSOs

44. At present there is no structure for the promotion or progression of PCSOs, although there is some scope for lateral development.

Comprehensive Spending Review

45. The Comprehensive Spending Review will provide the Home Office with its first confirmation of funding for policing for the next few years, and while this will give some indication of the overall level of budget cuts the service as a whole will face, it will not give the Metropolitan Police the detailed information needed to make any firm decisions, which will also depend on further discussions with the Mayor and the Metropolitan Police Authority.

46. It is therefore unlikely that detailed information will be available until nearer Christmas, although, it is expected that the organisation will be required to shrink in size, impacting upon the recruitment and retention of staff and on future promotion opportunities for all.

47. With this continued uncertainty, Management Board have considered a framework to guide our way through the coming years and sets out our guiding principles to ensure stability through the challenge of the 2012 Games, followed by the changes needed beyond, then looking to provide continued security and safety for Londoners within a much reduced level of resources.

48. It is promised that we will strip out any waste, duplication and unnecessary spending and take advantage of every possible saving, as we move forward, professionalising and rationalising our business support functions to create effective client/contractor roles and responsibilities.

49. Our aim will be to deliver better policing for less at every level - from neighbourhood patrols through to international counter-terrorist work.

Conclusion

50. Despite the anticipated financial restrictions and the uncertainty this brings, the drive to develop a workforce that better reflects the demographic profile of the population of London will continue to be a priority for the MPS, and while we are unable to articulate what the exact numbers would be in respect of the progression of BME and female staff and officers over the next ten years, we will continue the aim of improvement in these areas.

51.The emphasis within the Equality Act 2010 on outcomes that demonstrably evidence promotion of equality in the workplace and in public service provision (as opposed to the bureaucracy of monitoring regimes), mean that where inequality is tangible and evidenced through our own data, there is the expectation that reasonable steps will be taken address the inequality.

52. The drive to improve will be directly influenced by the framework of activity we will be required to undertake in meeting our responsibilities around the Equality Act 2010, in addition to the opportunities presented by existing activity including the implementation of a new professional development domain framework, the ongoing talent management activity and the work undertaken as part of the Workforce and Working Culture Strand of the MPS Equality and Diversity Strategy.

C. Other organisational and community implications

Equality and Diversity Impact

1. The diversity and equality implications are discussed within the report, in particular the activity that will be required in response to the anticipated public sector Equality Duty requirements of the Equality Act 2010 and the setting of equality outcome objectives for the MPS based on this data.

Consideration of MET Forward

2. The collective impact of the activity undertaken in meeting our responsibilities around the requirements of the Equality Act 2010, the implementation of a new professional development domain framework and the ongoing activity around talent management, should all collectively contribute to the delivery of Met Forward by increasing confidence in policing through the increased presence of BME and female officers and staff at more senior ranks and pay bands, and making the MPS more representative of the communities of London.

Financial Implications

3. The costs associated with the activity undertaken in meeting our responsibilities around the requirements of the Equality Act 2010, the implementation of a new professional development domain framework and the ongoing activity around talent management, will have to be contained within HR and Business wide budgets as approved in the MPA/MPS budget and business plan.

Legal Implications

4. The public sector equality duties [sections 149 to 157 Equality Act 2010] establish a general duty on public authorities to have due regard, when carrying out their functions, to the need:

• to eliminate unlawful discrimination, harassment or victimisation;
• to advance equality of opportunity; and
• to foster good relations.

5. The failure by a public authority to fulfill a public sector duty will be enforceable by way of judicial review. The legal provisions will come into force in April 2011 after further consultation to identify the duties more precisely.

6. The right of an employer to take positive steps when recruiting or promoting to meet the needs of, or redress any disadvantage suffered by, individuals on account of a protected characteristic [section 159 Equality Act 2010] is currently being considered by the Government.

7. The general provisions to allow an employer to take voluntary proportionate measures to train or encourage under-represented groups to apply for jobs has been broadened to allow employers to overcome a perceived disadvantage or meet specific needs [section 158 Equality Act 2010].

Environmental Implications

8. It is anticipated there will be no environmental implications arising from this report.

Risk Implications

9. It is anticipated there will be no significant risks or health and safety implications arising from this report.

D. Background papers

None

E. Contact details

Report authors: David Maguire, Senior Organisational Development Consultant, MPS

For information contact:

MPA general: 020 7202 0202
Media enquiries: 020 7202 0217/18

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